UC-NRLF 


SB    MD    327 


TOWN  PLANNING 


FOR 


DOVER,  N.  J. 

REPORT  TO  THE 
MAYOR  AND  COMMON  COUNCIL 


BY 


ARTHUR  COLEMAN  COMEY 


1913 


TOWN  PLANNING 


FOR 


DOVER,  N.J. 


REPORT  TO  THE 
MAYOR  AND  COMMON  COUNCIL 

BY 

ARTHUR  COLEMAN  COMEY 

(Mem.  Am.  Soc.  Landscape  Architects) 


1913 


PRINTERS 

MAGUIRE  &  POWERS 
DOVER,  N.  J. 


ARTHUR  C.  COMEY 

LANDSCAPE  ARCHITECT 

CONSULTANT  ON  CITY  PLANNING 

HARVARD  SQUARE,  CAMBRIDGE,  MASS. 


July  I2th,   1913. 

To  the  Hon.  the  Mayor,  Recorder, 

Alderman,  and  Common  Council, 
Dover,  N.  J. 

Gentlemen  :  — 

I  beg  to  submit  herewith  report  on  the  Town  Plan  of 
Dover,  undertaken  in  accordance  with  resolution  of  Council 
passed  April  28th,  1913. 

This  report  embodies  the  results  of  several  weeks  careful 
study  of  the  problems  involved,  blocking  out  the  field,  planning 
in  detail  those  improvements  capable  of  immediate  accomplish- 
ment, and  especially  outlining  the  ways  and  means  for  carrying 
out  comprehensive  town  planning  in  the  future. 

Respectfully  submitted, 

(Signed)  Arthur  Coleman  Comey. 


DIAGRAMS 'and  PLANS 

PAGE 

General  Plan  for  Dover  Front 

Proposed  Cross- Sections  for  Streets  and  Boulevards       8 
Sketch  Plan  for  a  Town  Centre  24 


305158 


GENERAL  VIEW   OF   DOVER    FROM    EASTERN    ROCKY   SPUR 
This  cutlock  should  be  dedicated  permanently  for  public  use 


IN    HAMPSTEAD    GARDEN   SUBURB,   ENGLAND 
Ten  houses  per  acre,  harmoniously  designed  and  set  well  apart,  forming  artistic  street  views 


Town  Planning  For  Dover,  N.  J. 


i.    THE  TOWN  PLAN. 

Two  hundred  years  ago,  when  Dover  was  first  settled  (in  1/13). 
and  one  hundred  years  ago,  when  its  iron  industry  was  attaining  im- 
portance, and  even  fifty  years  ago,  when  the  manufacturing  develop- 
ment began  to  be  felt,  no  plan  was  made  for  the  growth  of  the  town. 
One  main  street  ran  through  the  valley,  and  on  this  level  floor  a  begin- 
ning was  made  of  a  gridiron  system.  In  one  place  this  was  carried 
over  the  surrounding  hillside,  but  for  the  most  part  the  streets  were 
but  the  continuation  of  lanes  running  straight  up  the  steepest  hills, 
with  few  or  no  cross  streets  and  absolutely  no  means  of  access  by  easy 
gradients  along  the  slope.  No  land  was  set  aside  for  public  buildings 
or  parks — not  even  an  open  square.  The  explanation  and  excuse  was 
that  "No  one  expected  Dover  to  become  a  city."  But  today  it  has  al- 
ready outgrown  this  hap-hazard  congeries  of  by-ways,  and  continued 
growth  in  the  future  is  reasonably  certain.  Its  increase  of  twenty-five 
per  cent,  in  the  past  decade,  somewhat  above  the  average  for  towns  of 
its  class  may  be  taken  as  a  gage  for  the  decades  to  come.  Now  is  the 
time  to  direct  this  growth  so  that  a  convenient,  healthful,  and  beautiful 
town  may  result, — in  short  to  adopt  and  carry  out  a  town  plan. 

The  town  plan  will  concern  itself  with  Dover's  physical  needs, 
treating  them  as  component  parts  of  an  organic  whole, — its  waterways 
and  railroads,  its  street  system  and  public  services,  its  administrative, 
educational,  and  recreative  centres,  and  lastly  the  control  of  private 
property.  The  effect  of  the  rugged  topography  must  be  considered  : 
adequate  provision  must  be  made  for  sanitation  and  health  ;  ease  of 
communication  and  the  economic  subdivision  of  land  into  lots  must  be 
secured.  Recreation  facilities  must  be  brought  to  the  point  where 
they  will  serve  all  the  people :  school  playgrounds  for  the  little  chil- 
dren, playfields  for  the  older  ones,  woods  and  view  parks,  and  the 
shores  of  ponds  will  need  to  be  acquired  to  gradually  form  a  balanced 
system.  Compared  with  other  progressive  small  cities  Dover  is  still 
very  deficient  in  park  acreage,  as  is  shown  in  Table  T. 

An  estimate  of  the  proposed  park  acreage  shown  on  the  general 
plan  in  the  front  of  this  report  is  given  in  Table  II. 


®  66  FT.   RESIDENCE  ST.   L>ne  ©BOUUEVARO(W«TH  NOCARS) 
Narrow  pavement  tor  light  traffic  For  encircling  road,  connecting  parKs. 


SOFT.  MINOR  ST. 

ble  for  locol  residence 
Streets  with  no  thro'  traffic. 


B  i_  >\c  KVV  E  LL  S  T.,  Too  narrow, 
Vehicles  inter  fere,- should  be  85-90>  cf.NoA 


MAIN  THOR.OWGHFA»Rt:, WITH  CARS 

. table  for  BlocKwell  St.,whkre  widening  possible. 
and  Canal  Highway -minimum  town  .section. 


BROOK  ROAD,  with  stream  in  parKing. 


1 


Interurban Cars      Fast  Motor  Travel  5low  Vehicles 

WNXS.U  HlCHW/^.*V,- ULTIMATE.    COUNTRV   SECTION. 


PROPOSED  CROSS-SECTIONS  FOR  STREETS  AND  BOULEVARDS 


TABLE  I. 


COMPARATIVE  PARK  STATISTICS,  1910. 
Fifteen  of  the  Smaller  Cities  and  Dover,  N.  J. 


City 


Niagara  Falls.  N.  Y. . , 

La  Crosse.  Wis 

Colorado  Springs.   Col 

\\'altliani,  Mass 

X-.isluia.  X.  H 

Floin,  III 

.Madison,    Wis 

Mansfield.    () 

East    Liverpool,   O. ... 

Denison,    Tex 

M:\rquette,    Mich 

Menominee.    Mich 

Mankato,   Minn 

Keene,  N.  H 

Ware,    Mass 


Population 
1010 


30,445 
30,417 
29,078 
27,854 
20,005 
25,970 
25,531 
20,708 
20,387 
13,032 
11,503 
10,507 
10,305 
10,008 
8,774 


Park 
Acreage 


412 

400 

2,560 

137 

210 

237 

150 

100 

101 

140 

210 

83 

80 

221 

92 


Pop.  per 

Acre 


74 

70 

11 

203 

124 

110 

170 

208 

202 

93 

55 

127 

130 

46 

95 


A 

Annum 


Maintenance 


pel- 
Acre 


$34,200 

4,141 

23,000 

2,100 

400 

3,000 

38,730 

400 
2,400 

GOO 
3,247 
1,542 
4,700 

278 
0,000 


10.35 

8.94 
15.33 

1.90 

12.01 

258.20 

4.00 
23.70 

4.11 
15.46 
18.57 
61.25 

1.27 
65.22 


per 
Capita 


$1.12 
.14 
.79 
.08 
.02 
.12 
1.52 
.02 
.12 
.04 
.28 
.15 
.45 
.03 
.68 


Average 


115 


38.94 


Dover,  N.  J.,  1910.  .  .. 
Dover,  N.  J.,  1913.  ... 


7,468 
8,005 


0 
33 


244 


0 
1,000 


30.30 


.12 


TABLE  II. 
DOVER,— PARK  STATISTICS. 

Acres 

I.     Present  Parks,  total  area   32 . 8 

Kurd  Park,  donated  in  1911 9.3 

Reservoir  Park,  control  assumed  in   1912    23.5 

1 1.      Proposed  Parks — for  immediate  acquirement    37.2 

Rocka  way  River    5.0 

Ford    Pond     10.0 

Black  and  Goodale   Ponds    10 .0 

Dover    Pond     5 . 0 

Moller's   Rock    1.0 

Fast  Side  Playground   1  •  2 

Civic   Centre  and   Basin    '.  .  .  .    5.0 

I II.     Proposed  Parks — subsequent  additions    90.0 

Fastern  Rocky  Spur,  Section    1 18.0 

Eastern  Rocky  Spur,  Section  2 20  0 

Reservoir    Park — eastern    extension 7.0 

Reservoir  Park — western   extension 20 . 0 

Playfield    10.0 

Additional  Playgrounds — not  shown 15.0 

Total    .  IfiO.O 


A  DOVER  STREET  WITH    NO  THROUGH  TRAFFIC 
Curbs  are  much  too  far  apart,  forming  a  barren,  straggling  roadway,  and  leaving  quite  inadequate  space  for  trees 


A   RESIDENTIAL  STREET   IN   ROLAND    PARK,   BALTIMORE 
Narrow  roadway  for  light  traffic,  with  trees  in  parking  strip  and  houses  set  well  back 


10 


(  )n  the  hasis  of  115  people  per  acre  of  parks  Dover  should  now 
have  seventy  acres  (Groups  I  and  II),  and  hy  1950,  with  an  estimated 
population  of  18,500,  it  should  have  acquired  ninety  acres  more  (Group 
III). 

2.    THE  SURVEY. 

As  a  hasis  for  comprehensive  town  planning  certain  surveys  are 
essential.  These  should  include  a  topographic  survey,  a  study  of  so- 
cial conditions,  and  statistics  of  traffic,  building1  conditions,  etc.  In  the 
topographic  survey  there  should  be  gathered  on  a  standard  map  of  the 
town,  at  a  scale  of  two  hundred  feet  to  the  inch,  data  showing  the  lo- 
cation of  all  waterways,  railways,  streets,  curbs,  property  lines,  build- 
ings and  other  structures,  grades,  contour  lines  at  five  foot  intervals, 
and  established  reference  points.  If  the  accuracy  of  the  survey  war- 
rants it,  a  system  of  co-ordinates  should  be  used,  starting  from  some 
permanent  base,  to  which  all  points  should  be  referred. 

This  standard  map  may  be  completed  in  three  stages,  first  show- 
ing blocks  and  lots,  city  property,  railroads,  and  waterways  only.  If 
this  map  is  then  reproduced  on  tracing  cloth,  upon  Sheet  No.  2  may  be 
shown  houses,  lot  dimensions,  street  numbers,  etc.,  and  upon  Sheet 
Xo.  3  contours  and  other  topography.  Prints  may  then  be  made  from 
any  of  the  three  maps  to  order  for  the  different  town  departments  or 
fcr  sale.  The  value  of  such  a  standard  map  kept  up  to  date  will 
quickly  repay  its  cost.  In  the  assessors'  department  it  will  be  of  parti- 
cular service  in  locating  hitherto  untaxed  property,  each  lot  and  piece 
in  each  block  being  numbered  and  assessed,  thereby  covering  the 
entire  area  of  the  town.  Further  maps  showing  the  range  in  land 
values,  the  distribution  of  population,  and  the  zones  of  commercial  and 
industrial  property,  railroads,  residential  sections,  and  rural  land  about 
Dover  would  be  useful,  especially  if  they  could  be  redrawn  every  year 
or  two,  thus  indicating  graphically  the  growth  of  the  town. 

The  social  survey  should  be  gradually  compiled  as  opportunity  of- 
fers, utilizing  the  census  and  other  sources  where  possible.  It  should 
embrace  statistics  of  population,  education,  health,  housing,  industrial 
conditions,  charities,  and  crime.  Such  a  thorough  study  of  social  con- 
ditions will  furnish  an  exact  knowledge  of  the  needs  of  the  community 
not  otherwise  obtainable,  and  in  the  course  of  time  will  constitute  a 
reliable  index  of  the  extent  of  the  town's  progress. 

3.    LEGISLATION. 

A  number  of  proposals  embodied  in  this  report  can  be  carried  out 
at  once  by  the  proper  authorities  in  each  instance,  but  in  most  cases 

1  I 


MORRIS   CANAL  ABOVE  THE  TOWN 
This  beautiful  stretch  might  well  be  kept  as  a  lake  if  the  canal  is  abandoned 


A   BROOK   ROAD    IN   WEST   MEDFORD,    MASS. 
The  most  economical  and  attractive  method  of  treating  a  small  stream  in  a  residential  community 


12 


broader  powers  will  greatly  facilitate  speedy  action.  This  is  to  a  large 
extent  a  matter  of  legislative  enactment  or  charter  amendment,  which 
should  provide  for  the  establishment  of  a  plan  or  improvement  com- 
mission and  endow  it  with  power  to  put  into  effect  an  authoritative 
plan  of  the  town  and  its  vicinity,  covering  the  existing  and  proposed 
locations  of  streets,  parks,  and  other  public  works,  and  the  control  of 
private  property.  No  damages  should  be  allowed  for  structures  erected 
in  contravention  of  the  plan,  and  no  plan  should  be  permitted  to  be  filed 
unless  it  conforms  to  it.  Among  the  recent  enactments  covering  these 
points  in  various  cities  and  states  that  of  Pennsylvania  for  cities  of  the 
Third  Class  is  in  many  ways  a  model  one  and  is  given  herewith  in  full 
(see  page  31). 

Another  bar  to  town  development  has  been  the  method  of  pay- 
ment for  improvements  by  general  tax  or  bonds  issued  as  a  general 
lien  upon  the  town,  which  must  thus  constantly  draw  on  its  credit  to 
the  enhancement  of  private  property  values  at  its  expense  The  town's 
debt  soon  becomes  large  and  construction  ceases.  In  many  instances 
improvements  have  been  desired  by  practically  all  those  whose  pro- 
perty would  be  benefited,  and  they  would  gladly  share  the  expense, 
but  there  has  been  no  way  of  identifying  the  cost  and  the  benefit,  that 
is,  making  the  property  benefited  pay  the  cost  of  the  improvement. 
This  can  best  be  brought  about  by  means  of  special  assessments,  which 
not  only  place  the  cost  where  it  belongs,  but  by  spreading  the  pay- 
ments over  a  period  of  years  reduce  the  annual  expense  to  a  very  low 
figure.  Wherever  this  system  is  in  force  very  extensive  improvements 
have  been  made,  until  the  whole  city  has  been  paved,  sidewalks  laid, 
trees  planted,  and  in  many  instances  much  or  all  of  the  park  system 
financed.  The  success  of  Kansas  City  in  this  respect  is  noted,  $i  1,000.000 
having  been  raised  in  seventeen  years  by  special  assessments  for 
parks, — yet  the  people  there  are  today  demanding  even  more.  Denver 
has  acquired  an  extensive  park  system  and  civic  centre  and  completed 
many  miles  of  street  opening  and  paving  by  means  of  special  assess- 
ments, under  the  provisions  of  its  charter,  extracts  from  which  are 
given  herewith  (see  page  33). 

4.    STREET  SYSTEM. 

The  layout  of  the  streets  of  a  town  is  the  most  important  single 
element  in  its  plan,  as  upon  it  depends  the  ease  of  communication, — 
both  in  regard  to  directness,  gradient,  and  congestion, — the  size  of 
blocks,  depth  of  lots,  and  to  a  considerable  extent  the  general  charac- 
ter of  entire  neighborhoods.  The  primary  function  of  streets  is  to 
provide  avenues  of  circulation  for  traffic,  and  this  is  most  economic- 
ally effected  if  the  traffic  is  concentrated  upon  certain  main  thorough- 

13 


ROCKAWAY   RIVER   IN   THE   TOWN 
An  attractive  bridge  and  elm  in  commonplace  surroundings 


RIVER    PEGNITZ   IN    NUREMBERG,   GERMANY 
Artistic  river  bank  treatment  in  a  closely  built  up  section,  with  a  wading  beach  and  shrubbery  planting 


14 


fares,  which  should  form  a  network  of  communication  along  easy 
grades  with  adequate  width  and  efficient  paving.  The  remaining 
streets,  which  constitute  the  vast  majority,  can  then  be  treated  as 
purely  local,  with  the  corresponding  economy  in  first  cost  and  upkeep. 
This  determination  of  width  and  its  subdivision  into  walks,  parking, 
and  roadway  should  be  designed  to  serve  exactly  the  needs  of  each 
case.  The  principal  types  of  cross-sections  of  streets  suited  to  Dover 
arc  indicated  on  the  accompanying  diagram  (page  8). 

In  platting  new  subdivisions  lots  smaller  than  forty  or  fifty  by  one 
hundred  feet  should  be  avoided,  wherever  land  values  will  permit. 
1  Hocks  should  as  a  rule  not  be  over  six  hundred  feet  long,  to  obviate 
undue  detouring.  In  many  cases  however  the  difference  in  level  on  a 
side  hill  will  be  such  that  a  cross  street  would,  be  too  steep  to  be  of 
service  and  may  be  replaced  by  a  foot-path  alone.  Wherever  these 
now  occur  connecting  different  sections  by  short-cuts  they  should  if 
possible  be  preserved.  With  a  grass  or  shrubbery  strip  on  either  side, 
they  will  become  a  valuable  asset  in  the  town's  attractiveness. 

The  relative  merits  of  straight  and  curved  streets  depend  to  a 
large  extent  upon  their  use  and  location.  Business  streets  and  streets 
upon  level  ground  should  as  a  rule  not  curve  to  any  great  degree ;  but 
residence  streets  on  rough  topography  such  as  occurs  at  Dover  should 
be  laid  out  to  conform  to  the  steep  slopes,  avoiding  heavy  grades  and 
deep  cuts  and  fills.  The  resulting  picturesque  quality  of  its  street 
scenes  should  be  one  of  its  most  marked  elements  of  beauty.  Yet  hith- 
erto hardly  any  streets  have  been  so  laid  out,  but  they  usually  scale 
hills  without  regard  to  topographical  control.  In  Dover,  gradient 
should  be  a  determining  factor,  for  outside  of  the  few  routes  travers- 
ing the  narrow  valley  nearly  every  road  must  climb  steep  hillsides  to 
gain  access  to  the  upper  levels. 

The  heaviest  traffic  will  however  continue  to  be  through  the  val- 
ley along  Black  well  Street,  though,  with  the  two  car  tracks,  its  width 
of  seventy-five  feet  over  all  and  forty-five  feet  for  the  roadway  is  not 
quite  sufficient  to  permit  the  easy  flow  of  traffic  which  would  be  at- 
tainable if  the  pavement  were  but  five  or  ten  feet  wider.  As  the  street 
is  now  laid  out,  there  is  not  room  for  a  vehicle  to  pass  another  vehicle 
standing  at  the  curb  without  turning  out  upon  the  car  tracks  (see  dia- 
gram, page  8).  Widening  the  street  by  the  small  amount  desired  ap- 
pears however  hardly  possible  through  the  business  district ;  but  with 
the  laying  of  a  smooth  pavement  the  difficulty  will  be  minimized,  and 
further  relief  may  ultimately  be  given  by  means  of  a  new  by-pass  road, 
which  will  be  discussed  later.  The  other  county  road,  Clinton  Street, 
is  adequate  in  width,  as  are  most  of  those  streets  designated  secondary 
highways  on  the  general  plan  accompanying  this  report.  Upon  the 

15 


ROCKAWAY   RIVER   ABOVE  THE  TOWN 
To  preserve  its  beauty  the  banks  at  least  should  be  in  public  ownership 


A   BROOK   IN   A   DENVER    PARK 
This  wading  place  is  suggestive  for  Hurd  Park 


16 


remaining  local  streets  the  case  is  exactly  the  reverse,  for  the  total 
width  is  frequently  sixty  to  sixty-six  feet,  and  the  curbs  are  set  far 
apart,  usually  but  eight  feet  from  the  property  line,  leaving  a  wide, 
dusty  space  of  thirty  to  forty  feet  for  the  roadway.  This  should  in 
every  case  be  narrowed  to  twenty-four  or  twenty-six  feet,  as  this  will 
still  allow  ample  room  either  for  one  vehicle  to  pass  between  two  oth- 
ers standing  at  opposite  curbs  or  for  passing  on  either  side  of  a  slowly 
moving  vehicle  in  the  centre.  With  the  decrease  in  area  a  much  more 
durable  water-proof  pavement  can  be  laid  in  place  of  the  alternately 
dusty  and  muddy  macadam.  Furthermore  if  the  sidewalks  are  placed 
next  to  the  property  line  a  broad  parking  strip  will  be  left,  with  ade- 
quate space  for  trees,  between  the  walk  and  the  curb. 

5.    STREET  TREATMENT. 

Upon  the  condition  of  the  streets  and  their  furnishing  depends  to 
a  large  extent  the  convenience  and  attractive  appearance  of  the  town. 
The  paving  is  of  first  importance  and  should  be  selected  according  to 
the  traffic  the  street  is  apt  to  carry.  Blackwell  Street,  which  is  a 
county  road,  should  probably  be  surfaced  with  wood  block  or  bitulithic 
pavement,  but  on  all  other  roads  the  traffic  does  not  require  such  an 
expensive  surface.  There  are  three  alternative  pavements  which  are 
particularly  serviceable  on  secondary  streets.  Under  modern  methods 
concrete  coated  with  asphalt  is  being  laid  very  cheaply,  as  low  as 
ninety  cents  per  square  yard.  This  combines  the  advantage  of  a  per- 
manent base  with  a  cheap  wearing  surface,  which  may  be  renewed 
everv  two  or  three  years  when  necessary  at  a  few  cents  per  square 
yard.  Furthermore  the  concrete  may  be  molded  into  a  slightly  de- 
pressed gutter  and  curb  face,  obviating  the  added  expense  of  separate 
curbing.  Macadam  penetrated  with  asphalt  or  tar  after  the  upper 
stone  is  laid  is  a  cheap  form  of  bituminous  pavement  adapted  to  mod- 
erate traffic  and  may  be  laid  as  low  as  $1.05  per  square  yard.  It  will 
require  resurfacing  very  seldom  under  such  conditions.  Either  of 
these  two  types  are  water-proof  and  dry,  requiring  a  certain  amount  of 
cleaning  to  prevent  their  becoming  dusty.  Ordinary  macadam,  cost- 
ing about  one  dollar  per  square  yard,  treated  each  year  with  a  dust 
preventive,  will  maintain  a  dustless  surface  with  little  or  no  atten- 
tion, but  is  not  as  durable  as  the  other  two. 

The  trees  on  the  public  highways  in  Dover  are  under  the  care  of 
the  Shade  Tree  Commission.  Besides  systematic  maintenance,  re- 
planting should  be  carried  on  where  gaps  occur,  and  all  new  streets 
should  be  set  with  trees  at  a  uniform  distance  from  the  curb  and  from 
each  other.  The  latter  distance  for  most  species  should  be  forty  to  fifty 

17 


THE   UNSPOILED   SHORES  OF   BLACK  POND 
This  beautiful  sheet  of  water  should  be  enclosed  by  a  park  strip  and  a  roadway  providing  attractive  frontages 


LAKE   OF  THE   ISLES   PARK,    MINNEAPOLIS 
Effective  treatment  of  a  pond  in  a  residential  section 


18 


feel,  which  is  much  greater  than  common  practice,  in  order  to  allow 
space  for  symmetrical  growth.  As  a  general  rule  each  street  should  be 
planted  throughout,  or  at  least  for  several  blocks,  with  a  single  species 
of  tree  to  secure  harmony  in  effect.  Certain  varieties  are  best  adapted 
to  wide  avenues,  others  to  narrow  local  roads,  but  the  whole  list  of 
trees  which  are  suited  and  will  thrive  on  streets  is  a  short  one. 

Street  lights  should  be  artistically  treated  for  their  effect  both  at 
night  and  by  day.  Along  Blackwell  Street  the  merchants  might  well 
consider  installing  ornamental  fixtures  upon  the  trolley  poles,  using 
tungsten  lamps  in  large  globes.  Street  signs  at  intersections  should 
also  be  attached  to  the  same  poles,  and  to  the  separate  lighting  poles 
on  other  streets. 

Encroachments  upon  the  sidewalk  on  Blackwell  Street  and  else- 
where should  be  prohibited,  or  else  a  means  found  by  which  they  may 
be  leased  under  a  yearly  permit  as  concessions  or  taxed.  As  it  is  not 
desired  to  encourage  such  encroachment,  a  reasonable  rate  would  be 
the  same  amount  per  square  foot  as  the  current  taxes  per  running  foot. 
No  permit  should  ever  be  issued  beyond  a  certain  distance :  on  Black- 
well  Street  this  should  be  less  than  one  foot,  as  the  street  is  already  too 
narrow.  No  permanent  structures  should  be  allowed  to  encroach  at 
all,  thus  leaving  the  way  open  to  clear  the  sidewalks  at  any  time. 

The  matter  of  grade  crossings  in  Dover  is  a  serious  one.  Three 
dangerous  ones  still  exist  on  the  Lackawanna  Railroad,  while  the  Cen- 
tral Railroad  of  New  Jersey  crosses  no  less  than  eight  streets  at  grade. 
The  relatively  few  trains  on  the  latter  road,  however,  and  their  slow 
speed  through  the  town  make  these  crossings  less  serious.  On  the 
Lackawanna  the  two  worst  crossings,  Orchard  and  Morris  Streets,  are 
at  the  bottom  of  hills,  making  them  exceedingly  dangerous,  but  at  the 
same  time  greatly  facilitating  their  removal  by  overhead  bridges.  If 
at  the  same  time  the  railroad  is  swung  farther  to  the  south,  as  is  now 
being  talked  of,  in  order  to  relieve  the  sharp  turn  to  the  west,  there 
need  be  little  change  in  grades. 

6.    CANAL  BOULEVARD. 

A  radical  change  in  Dover's  plan  may  be  brought  about  if  the 
Morris  Canal  is  abandoned.  This  canal,  unlike  others,  was  constructed 
to  climb  mountains  by  means  of  inclined  planes,  up  which  the  boats 
are  dragged  in  a  cradle  on  rails, — the  total  rise  between  Newark  and 
the  summit  at  Lake  Hopatcong  being  nearly  1,000  feet.  Such  a  canal 
can  apparently  never  be  run  to  successfully  compete  with  modern  rail- 
road transportation,  and  has  for  some  time  been  practically  unused. 
It  is  still  too  early  to  be  certain  what  the  Canal  Investigation  Commis- 
sion will  recommend,  but  it  is  to  be  hoped  that  the  canal  location  will 

19 


continue  to  be  dedicated  to  a  public  use.  The  most  favorably  consi- 
dered proposal  contemplates  widening  it  to  form  a  state  boulevard, 
running  by  easy  grades  through  the  hills,  directly  across  the  northern 
part  of  New  Jersey.  The  diagram  on  page  8  shows  a  cross-section  for 
such  a  highway,  with  provision  for  fast  and  slow  traffic  and  inter- 
urban  cars.  This  type  of  development  would  however  be  difficult  and 
unnecessary  for  the  short  distance  in  the  heart  of  Dover,  and  in  the 
present  town  plan  it  is  proposed  to  divert  it  at  the  base  of  Reservoir 
Hill  by  a  new  boulevard  seventy  feet  wide  over  the  Lackawanna 
tracks,  through  the  woods  on  the  little  hill  overlooking  Dover  Pond, 
over  the  Jersey  Central  tracks,  which  are  here  in  deep  cut,  to  Clinton 
Street;  thence  by  McFarland  Street,  widening  to  seventy  feet,  past  the 
proposed  town  centres  and  rejoining  the  old  canal  to  the  east,  where 
the  full  width  of  one  hundred  and  fifty  feet  is  resumed.  Along  the 
"flat"  towards  Wharton  is  a  delightful  stretch  of  the  canal,  with  beau- 
tiful tree  growth,  which  might  be  preserved  in  the  parking  beside  the 
river.  The  old  canal  bed  in  the  section  between  the  Lackawanna  Rail- 
road and  Sussex  Street  might  well  be  thrown  into  a  local  street.  The 
treatment  of  the  section  east  of  Sussex  Street  is  discussed  later  in  con- 
nection with  the  town  centre.  Farther  east  towards  Rockaway  is  an 
unusually  long  stretch  without  a  lock,  which  if  preserved  would  be 
suited  for  boating. 

In  the  laying  out  of  a  boulevard  beyond  the  eastern  town  limits  a 
cut-off  should  pass  over  the  IOAV  ridge,  avoiding  the  long  detour  the  ca- 
nal at  present  makes  around  it.  This  boulevard,  whether  a  part  of  a 
state  highway  or  not,  will  form  a  very  valuable  connection,  not  only 
opening  up  new  territory  well  suited  for  building  and  forming  an  at- 
tractive pleasure  drive,  but,  of  far  more  importance,  providing  an  en- 
tirely new  through  route  for  the  heavy  automobile  traffic  that  already 
so  congests  Blackwell  Street.  This  route  will  have  no  grade  crossings 
nor  steep  slopes  and  will  avoid  the  bad  acute  angle  turn  on  the  down 
grade  at  the  eastern  approach  to  the  town.  This  point,  with  its  three 
bridges,  car  track,  and  the  railroad  crossing  just  beyond,  is  a  constant 
menace  to  life  and  should  be  removed,  whether  the  boulevard  is 
opened  or  not,  by  constructing  a  new  road  over  the  canal  and  Jersey 
Central  tracks  some  five  hundred  feet  to  the  north. 

7.    NEW  HIGHWAYS. 

Connecting  the  wooded  hill  parks  to  the  east  and  west  of  the  town 
on  the  south  side,  the  existing  streets  should  be  widened  and  extended 
to  form  a  southern  boulevard  seventy  feet  wide.  Its  roadway  should 
be  surfaced  with  a  smooth  pavement ;  and  the  trees  should  be  planted 
and  cared  for  by  the  Commission.  By  roads  constructed  through  the 

20 


proposed  parks  the  boulevard  may  be  continued  so  as  to  form  with  the 
Canal  Boulevard  an  almost  complete  circuit  of  the  town.  Increased 
values  along-  its  route  should  more  than  repay  the  cost  of  opening  the 
boulevard,  which  will  form  an  essential  link  in  the  park  system. 

Among  other  possible  highway  improvements  should  be  noted  the 
feasibility  of  a  new  route  to  the  south-west  from  Morris  Street  near 
the  railroad  past  Ford  Pond,  through  Academy  Street  widened  and  ex- 
tended along  the  hillside,  to  a  junction  with  Prospect  Avenue  near  the 
top  of  the  divide.  Such  a  cutting  through  would  effect  several  gains, 
certain  of  which  might  be  obtained  by  the  opening  of  a  portion  only. 
It  would  afford  a  low  grade  route  to  the  upper  Morris  Street  section 
by  way  of  First  or  Second  Street,  neither  of  which  has  at  present  any 
outlet  towards  the  town.  It  would  open  up  both  these  streets  and 
Academy  Street,  all  of  which  can  now  be  reached  only  by  going  up  a 
hill  and  then  descending^again  sharply.  It  would  provide  better  ap- 
proaches to  the  South  Side  School,  which  is  now  in  the  same  pocket. 
It  would  bring  a  low  grade  route  to  points  far  up  the  steep  slopes  of 
German  and  Grant  Streets,  and  finally  it  would  afford  an  improved 
gradient  to  all  the  territory  to  the  south-west.  It  is  realized  however 
that  its  complete  acquisition  may  prove  difficult  and  expensive,  and  it 
is  brought  forward  at  this  time  rather  to  assure  that  nothing  shall  be 
done  in  contravention  of  such  a  plan  and  to  direct  such  partial  opening 
as  may  now  be  practicable  along  permanent  lines,  so  that  each  bit  may 
form  a  part  of  the  greater  scheme. 

In  the  north-west  section  it  is  very  desirable  that  a  connecting 
highway  be  opened  across  the  two  railroads,  the  river,  and  the  canal 
towards  the  "flat"  and  Wharton.  At  present  for  a  distance  of  two 
miles  above  Sussex  Street  there  is  no  bridge  for  public  use,  except  two 
frail  foot-bridges.  With  the  continued  growth  in  both  districts  and 
the  probable  establishment  of  new  factories  along  the  railroad  rights- 
of-way,  such  a  connection  is  becoming  imperative.  Its  precise  loca- 
tion will  depend  somewhat  on  local  circumstances,  but  an  extension 
of  Racine  Street  would  form  the  most  direct  route. 

Other  new  highways  should  be  located  so  as  to  afford  easy  access 
to  new  districts  as  they  are  opened  up.  Since  these  are  likely  to  spread 
over  relatively  flat  land  in  the  various  brook  valleys  near  the  town  it 
is  especially  desirable  that  provision  for  sewer  locations  and  surface 
drainage  be  made  by  platting  a  road  on  either  side  of  the  brook  bed, 
thus  guarding  against  fouling  of  the  water  and  any  possible  flood.  The 
added  attractiveness  of  such  a  treatment  will  at  the  same  time  more 
than  compensate  for  the  increase  in  width  over  an  ordinary  street, 
about  one  hundred  feet  between  property  lines  being  sufficient  (see 
diagram,  page  8). 

21 


FORD   POND,   IN  THE   HEART  OF  THE  TOWN 
A  suitable  site  for  a  South  Side  playground 


A   PLAYGROUND   IN    USE,  WHEELING.  W.  VA. 
Play  for  hundreds  on  a  small  area,  with  a  few  simple  pieces  of  apparatus,  and  efficient  leadership 


22 


8.    RIVERS  AND  PONDS. 

The  use  of  Rockaway  River  by  Jersey  City  for  a  water  supply  en- 
sures to  a  certain  extent  that  it  will  be  kept  in  a  sanitary  condition,  but 
it  can  never  be  thoroughly  clean  unless  its  banks  at  least  are  in  public 
control.  In  places  where  improvements  have  encroached  to  its  very 
edge  this  may  mean  simply  the  bed  of  the  stream  and  a  few  feet  on 
either  side,  but  elsewhere  a  strip  wide  enough  for  a  path  and  shrub- 
bery planting  should  be  acquired,  and  on  the  outskirts  where  new  ter- 
ritory is  to  be  opened  up  a  border  road  should  be  platted.  The  con- 
trast between  the  European  method  of  treating  a  river  in  the  cities  and 
the  usual  American  way  is  very  pronounced,  for  there  the  rule  is  to 
present  the  best  side  to  the  river,  often  with  a  bordering  road  and 
architecturally  treated  embankments,  while  in  the  United  States — and 
Dover  is  no  exception — the  worst  side  is  turned  toward  the  river, — the 
dump  heap  and  railroad  fill  for  its  embankment,  thereby  depreciating 
land  values  instead  of  enhancing  them,  as  is  possible  where  the  river  is 
recognized  to  be  an  asset. 

The  four  ponds  within  the  town  limits  should  also  be  surrounded 
by  public  property.  In  their  case  however  more  liberal  takings  can  be 
made,  so  that  they  may  form  very  attractive  portions  of  the  park  sys- 
tems. Ford  Pond,  lying  in  the  heart  of  the  town,  and  at  present  the 
water  supply  of  the  Lackawanna  Railroad,  may  well  continue  to  fur- 
nish water  to  the  railroad,  but  it  should  be  drawn  down  two  or  three 
feet  and  the  edges  excavated  and  the  shores  filled  so  as  to  eliminate  the 
marsh  at  its  upper  end.  Along  one  side  should  run  the  highway  to  the 
south-west.  At  the  south  end  property  should  be  acquired  as  far  as 
Academy  Street,  to  provide  a  playground  in  connection  with  the  South 
Side  School,  which  will  be  discussed  in  more  detail  under  the  head  of 
Playgrounds.  The  present  natural  tree  growth  should  be  preserved 
and  reinforced,  and  shrubbery  set  out,  with  walks  and  seats  to  make  it 
available  for  the  general  use  which  its  central  location  ensures  for  it. 

Dover  Pond  is  more  closely  hemmed  in  by  the  rolling-mill  and  the 
railroads,  but  its  banks  may  be  improved  in  connection  with  the  river- 
bank  development  and  the  north-west  side  may  be  made  a  very  attrac- 
tive wooded  park  when  the  proposed  boulevard  is  opened  along  the  hill, 
thus  rendering  it  very  accessible.  Black  Pond  and  its  smaller  neigh- 
bor, Goodale  Pond,  should  be  enclosed  in  a  park  serving  the  north  side 
community,  which  is  expanding  rapidly  in  this  direction.  Sufficient 
space  for  a  playground  is  desirable  here  also.  The  cutting  of  ice  may 
be  permitted  to  continue  on  Black  Pond  until  the  demand  for  its  dis- 
continuance becomes  emphatic.  The  argument  for  river  parking  ap- 
plies with  equal  force  to  these  ponds,  for  unless  they  are  girdled  by 
parks  their  beauty  will  inevitably  be  lost  to  the  public,  and  each  little 
yard  backing  upon  them  will  be  apt  to  become  an  eye-sore  and  a  posi- 
tive detriment  to  the  neighborhood. 

23 


24 


g.    WOODS  AND  VIEW  PARKS. 

Of  all  the  topographical  characteristics  of  Dover  the  most  marked 
are  its  steep  hills,  sloping  up  from  the  town  so  sharply  that  in  places 
they  defy  any  building  upon  them  for  all  time.  These  otherwise  al- 
most worthless  ridges  and  spurs  should  form  literally  the  back-bone  of 
Dover's  park  system.  On  the  west  a  good  beginning  has  already  been 
made  in  the  assumption  by  the  Shade  Tree  Commission  of  the  control 
of  the  twenty-three  acres  acquired  for  the  reservoir  sites.  Unfortu- 
nately the  chestnut  blight  has  made  heavy  ravages  in  the  woods  here 
as  well  as  everywhere  else  in  northern  New  Jersey,  but  a  considerable 
growth  of  other  trees  still  remains,  which  may  gradually  be  developed 
by  planting  into  a  heavy  forest,  provided  however  that  the  all  too  fre- 
quent ground  fires  can  be  prevented.  Near  the  summit  of  the  hill 
vistas  should  be  left  open,  thereby  commanding  views  over  the  town 
and  surrounding  hills.  Ultimately  this  park  should  be  considerably 
extended,  taking  all  the  steepest  slopes  unfit  for  building,  together 
with  a  larger  section  of  forest  to  the  west. 

To  the  east  the  long  ridge  above  Morris  Street  terminates  in  an 
abrupt  rocky  point,  where  even  trees  find  it  hard  to  secure  a  foothold. 
This  rugged  spur  and  the  crest  of  the  ridge  back  of  it  should  also  be 
acquired  as  a  view  park  and  connected  with  the  town  at  its  eastern 
base  and  at  the  high  point  on  Morris  Street.  At  the  northern  extrem- 
ity of  this  eastern  ridge  and  nearer  yet  to  the  heart  of  the  town,  Mol- 
ler's  Rock  towers  directly  above  it,  commanding  extensive  views.  This 
should  be  secured  by  a  small  reservation  including  the  rock  and  the 
land  part  way  down  the  slope.  On  the  north  side  of  the  town  the 
ridges  are  less  abrupt,  and  the  highest  portion  is  already  practically 
included  in  the  extensive  holdings  of  cemetery  lands,  thus  insuring  its 
being  kept  open.  Black  Pond  Park  will  be  the  principal  public  open 
space  in  this  district. 

10.    THE  PLAYFIELD. 

Dover  with  its  industrial  population  is  already  in  need  of  facilities 
for  more  intensive  recreation.  This  may  in  part  be  provided  by  estab- 
lishing a  large  playfield,  capable  of  ultimate  development  as  a  complete 
recreation  centre,  with  field  house,  ball  fields,  and  space  for  other 
games.  At  present  one  or  two  vacant  blocks  are  availed  of  in  the 
town,  but  in  a  few  years,  at  the  very  time  when  their  use  is  becoming 
greatest,  these  will  doubtless  be  withdrawn  for  building  purposes.  The 
location  of  a  permanent  playfield  should  be  reasonably  central  and  ac- 
cessible from  any  portion  of  the  town,  but  owing  to  the  acreage  in- 
volved it  cannot  be  placed  on  expensive  land.  These  conditions  are 
already  met  by  Kurd  Park,  but,  as  the  plan  adopted  for  its  improve- 
ment calls  for  the  retention  and  enlargement  of  the  brook  meandering 

25 


through  it,  little  room  will  be  left  for  more  than  a  children's  play-lawn. 
Directly  across  the  canal  is  a  suitable  tract  of  rather  low  land  border- 
ing Rockaway  River,  which  should  prove  inexpensive,  as  it  is  occa- 
sionally flooded  and  is  therefore  not  suited  for  building.  As  a  playfield 
it  might  however  be  gradually  filled  above  the  level  of  any  ordinary 
high  water  with  a  layer  of  cinders,  which  may  be  obtained  very 
cheaply  in  that  locality.  Floods  at  intervals  of  three  or  four  years 
would  not  seriously  interfere  with  its  use  as  a  playground.  For  a  con- 
siderable period  its  only  improvement  need  be  simply  the  laying  out 
of  ball  fields  for  the  men  and  older  boys,  though  later  a  more  intensive 
development  will  probably  be  demanded. 

ii.    PLAYGROUNDS. 

The  most  vitally  needed  single  improvement  in  Dover  today  is 
the  provision  of  playgrounds  for  the  small  children.  These  can  best  be 
provided  in  connection  with  the  schools,  there  being  many  reasons  for 
this.  The  children  are  already  accustomed  to  going  to  the  schools ;  the 
sites  are  distributed  through  the  town  at  about  the  proper  distances 
for  playgrounds ;  the  buildings  may  be  utilized  as  field  houses,  saving 
the  expense  of  duplication ;  the  playgrounds  may  be  used  at  recess,  and 
after  school  hours  during  term  time,  as  well  as  throughout  the  day  in 
vacations.  The  playground  supervisors  may  very  advantageously  and 
economically  be  teachers  in  the  schools,  serving  as  supervisors  for  suc- 
cessive short  periods.  Too  much  stress  cannot  be  laid  upon  the  im- 
portance of  supervision  ;  for  without  an  instructor  the  grounds  are  apt 
to  become  rather  a  nuisance  than  a  benefit.  But  placed  under  compe- 
tent management  a  relatively  small  piece  of  ground  may  be  made  to 
serve  a  large  number  of  children,  who  will  be  attracted  by  the  presence 
of  the  instructor  and  the  active  play  which  he  or  she  induces.  Over  all 
there  should  be  a  Director  of  Recreation,  who  may  well  be  also  the 
Physical  Director  in  the  schools.  This  close  interlocking  of  outdoor 
play  and  indoor  exercise  should  prove  a  very  effective  solution  of  this 
vital  problem. 

The  first  step  must  be  the  securing  of  sufficient  land  about  each 
school  house,  in  no  case  less  than  an  acre  in  one  undivided  piece.  At 
the  South  Side  School  there  is  ample  room  on  the  relatively  level  land 
across  Academy  Street,  which  may  be  acquired  in  connection  with  the 
park  about  Ford  Pond.  At  the  East  Side  School  there  is  over  an  acre 
of  vacant  land  directly  back  of  the  school  as  far  as  the  Canal,  which 
may  be  joined  to  the  school  yard  by  vacating  the  short  cross  street  be- 
tween. At  the  North  Side  School  on  the  other  hand  no  space  is 
available,  but  a  small  play  lawn  might  be  provided  near  the  Canal 
Basin,  and  ample  room  may  be  made  available  in  the  park  about  Black- 
Pond,  where  a  field  house  might  be  erected.  The  proposed  playfield 

26 


also  will  be  reasonably  accessible  by  means  of  a  foot-bridge,  and  a  part 
of  this  may  be  set  aside  for  the  smaller  children.  At  the  outset  little  or 
no  apparatus  need  be  put  up,  but  eventually  there  should  be  a  few 
swings,  see-saws,  giant  stride,  sand  boxes,  slide,  etc.,  with  courts  for 
basket-ball,  "indoor  base-ball/'  volley-ball,  and  other  playground 
games.  But  of  far  more  importance  will  be  the  placing  of  the  play- 
grounds in  charge  of  competent  instructors,  for  it  has  been  clearly  de- 
monstrated that  the  one  essential  on  a  playground  is  the  instructor. 

12.    THE  TOWN  CENTRE. 

Dover  has  at  the  present  moment  an  opportunity  unparalleled 
among  towns  to  create  a  serviceable  and  effective  town  centre,  about 
which  its  public  and  quasi-public  buildings  may  in  the  future  be 
grouped.  There  is  need  now  of  sites  for  a  town  hall,  with  a  lock-up,  a 
library,  and  increased  school  accommodation.  The  town  hall  and  li- 
brary demand  central  locations  accessible  to  all,  yet  hardly  upon  the 
most  expensive  land.  The  best  solution  of  the  complicated  school 
problem  appears  to  be  not  a  new  grammar  school  on  the  South  Side  on 
Randolph  Avenue,  far  to  one  side  of  the  area  from  which  the  children 
would  come  and  necessitating  climbing  a  steep  hill  for  most  of  them, 
nor  the  enlargement  of  any  of  the  present  school-houses,  which  under 
the  state  law  would  necessitate  very  expensive  rebuilding,  but  a  new 
modern  high  and  vocational  school  building  at  some  central  point, 
subsequently  turning  the  old  high  school  rooms  in  the  North  Side 
School  over  to  grammar  classes.  Under  this  scheme  a  slight  redistrict- 
ing  would  relieve  the  pressure  all  over  the  town. 

The  advantages  of  grouping  public  buildings  are  obvious  though 
as  yet  seldom  accomplished  in  this  country,  except  on  paper.  From 
such  grouping  there  will  result  great  enhancement  of  architectural 
effect  and  the  possibility  of  providing  adequate  space  for  its  apprecia- 
tion, coupled  with  a  view-point  from  which  the  buildings  will  not  ap- 
pear in  sharp  perspective  along  a  relatively  narrow7  street,  but  as  the 
central  elements  of  a  broad  composition.  By  far  the  best  site  avail- 
able at  a  reasonable  figure  for  such  a  town  centre  in  Dover  is  part  or 
all  of  the  block  bounded  by  Sussex,  McFarland,  and  Foundry  Streets, 
including  with  it  the  land  about  the  old  Canal  Basin.  Whether  the 
canal  is  abandoned  or  not,  this  section  may  easily  be  kept  filled  with 
water  at  all  times,  as  it  is  situated  but  a  few  hundred  feet  beyond  the 
river  dam  furnishing  the  supply.  It  is  the  possibility  to  create  here  a 
small  park  about  the  basin,  flanked  on  one  side  by  public  buildings, 
which  constitutes  Dover's  golden  opportunity  to  produce  an  unusually 
attractive  focus  for  its  activities.  The  accompanying  plan  indicates  a 
possible  arrangement,  with  the  town  hall  on  Sussex  Street  and  the 
library  or  other  public  building  on  McFarland  Street.  A  third  build- 

27 


ing  site  rounding  out  the  group  might  be  utilized  on  the  south  half  of 
the  same  block.  In  the  north-east  corner  a  play  lawn  of  some  size 
might  be  provided,  and  subsequently  enlarged  by  acquiring  the  corner 
lot  on  Hudson  Street.  Lying  as  it  does  in  the  heart  of  the  town,  paths 
and  a  foot-bridge  or  two  would  render  this  bit  of  green  park  accessible 
to  all  the  people. 

13.    BUILDING  CONTROL. 

The  third  great  division  of  the  town  plan,  private  property,  is  con- 
trolled in  many  ways  by  the  layout  and  width  of  streets,  size  and  as- 
pect of  lots,  and  more  specifically  by  certain  laws  and  ordinances  cov- 
ering particular  features.  Among  these  the  establishment  of  building 
lines  preserving  an  open  strip  next  to  the  street  is  of  particular  value 
in  residential  districts.  The  character  of  the  street  is  thereby  per- 
petuated, as  no  single  building  is  allowed  to  abut  on  the  sidewalks  and 
interrupt  the  continuous  lawns.  Furthermore  if  the  street  should  at 
any  time  need  to  be  widened  this  can  be  done  without  the  heavy  ex- 
pense of  tearing  down  buildings.  On  Blackwell  Street  a  new  building 
line  might  be  established  five  or  ten  feet  back  of  the  present  one,  with 
a  view  to  ultimately  widening  the  street,  after  practically  all  the  front- 
ages had  been  rebuilt  on  the  new  line.  This  was  the  method  used  in 
widening  Chestnut  Street  in  Philadelphia,  but  may  prove  difficult  to 
apply  in  Dover  owing  to  the  long  period  before  any  extensive  rebuild- 
ing will  normally  take  place. 

The  outward  appearance  of  buildings  cannot  be  regulated  to  any 
extent,  though  it  may  be  possible  to  raise  architectural  standards 
through  example  and  persuasion.  Building  heights  on  the  other  hand 
should  be  limited  absolutely  while  there  are  still  no  unduly  tall  struc- 
tures in  Dover,  by  a  regulation  based  on  the  various  factors  governing 
the  desirable  height.  In  such  a  regulation,  cubage  (i.  e.  volume), 
which  controls  the  congestion  in  the  street,  and  the  average  height  of 
the  front  elevation,  which  controls  the  amount  of  light  and  air,  should 
vary  directly  as  the  width  of  the  street,  and  the  tower  building  should 
be  encouraged  without  however  the  abuse  of  its  unrestricted  adoption. 
The  following  regulation  is  suggested  : — 

Height  Regulation  for  Fire-Proof  Commercial  Buildings. 
A  building  may  occupy  its  entire  lot  to  a  height  not 
exceeding  three-fourths  of  the  width  of  the  principal 
street  upon  which  it  faces,  and  not  exceeding  in  any  case 
seventy-five  feet.  Above  this  height  the  cubage  of  the 
building  shall  not  exceed  one-fourth  of  such  height  mul- 
tiplied by  the  area  of  the  lot. 

Further  regulations  governing  the  method  of  measurement,  inter- 
ior courts,  cornices,  etc.,  should  also  be  included  as  parts  of  a  carefully 
drawn  building  code  adapted  to  local  conditions. 

28 


Commercial  buildings  and  tenements  are  in  Europe  limited  to 
definitely  prescribed  zones,  but  it  is  a  question  whether  much  can  be 
done  in  this  country  along-  this  line  at  present.  Such  a  zone  system  if 
ultimately  established  would  however  be  a  great  protection  against  de- 
preciation through  undesirable  building;  and  by  fixing  the  use  of  land 
over  a  period  of  years  it  would  create  higher  real  values. 

14.    HOUSING. 

While  the  present  town  planning  report  does  not  pretend  an  ex- 
haustive study  of  the  housing  problem  certain  aspects  should  be  briefly 
noted.  As  a  negative  measure  of  control,  the  state  Tenement  House 
Law  if  thoroughly  enforced  should  be  an  effectual  preventive  against 
the  worst  slum  conditions,  as  they  exist  in  other  somewhat  larger 
towns.  But  much  of  a  more  positive  nature  should  be  done  to  improve 
home  conditions  in  Dover.  Tenements  are  unnecessary  in  a  town  of 
its  size.  They  have  been  proven  detrimental  to  health  and  citizenship 
founded  upon  the  home  and  should  be  discouraged  absolutely.  No 
house  should  occupy  more  than  forty  per  cent,  of  its  lot,  and,  in  the 
new  section  at  least,  the  number  of  houses  per  acre  should  be  much 
less,  not  over  ten  or  twelve.  The  best  type  for  the  lowest  paid  class 
of  workmen  will  probably  be  the  two-family  house,  whether  of  the 
semi-detached  type,  the  families  living  side  by  side,  or  of  the  "duplex" 
type,  with  one  over  the  other.  In  either  class  each  family  should  have 
its  own  entrances  and  front  and  back  yards.  Tf  the  houses  are  not  per- 
mitted closer  than  fifteen  feet  all  rooms  may  be  light  and  well  venti- 
lated. 

In  the  planning  of  new  residential  sections  the  principles  underly- 
ing the  garden  suburbs  of  England  should  be  applied  as  far  as  practi- 
cal. Possibly  in  the  less  expensive  districts  homestead  aid  can  be 
modified  to  finance  co-partnership  undertakings,  through  which  dura- 
ble, attractive  homes  may  be  provided  at  the  least  cost  and  with  due 
safeguards  to  the  workmen's  interests.  The  opportunity  to  garden  on 
a  small  tract  can  best  be  provided  by  allotments,  which  may  be  rented 
from  year  to  year,  thus  avoiding  the  responsibility  of  permanently 
holding  the  land  which  the  resident  would  otherwise  have  to  assume. 
Such  gardening  affords  not  only  a  healthful  change  from  indoor  work, 
but  also  will  assist  materially  in  eking  out  the  workman's  income. 

The  town  can  exercise  direct  control  for  improved  housing  by  re- 
quiring that  all  plats  filed  shall  conform  to  modern  town  planning 
principles :  certain  main  thoroughfares  distinguished  sharply  from  the 
majority  of  residential  streets,  all  laid  out  to  fit  the  topography,  with 
low  gradients  along  the  hillsides,  and  the  added  beauty  of  curving 
streets  and  park  reservations  along  streams.  In  this  way  these  resi- 
dential districts  may  be  made  among  the  most  attractive  features  of 
the  Dover  of  the  future. 

29 


Appendix. 


AUTHORITATIVE  PLAN  COMMISSION, 

PENNSYLVANIA  ACT. 

Adopted  July  i6th,  1913. 

Sec.  i.  That  an  additional  executive  department  in  the  govern- 
ment of  cities  of  the  third  class  is  hereby  created,  to  be  known  as  the 
Department  of  City  Planning,  which  shall  be  in  charge  of  a  City  Plan- 
ning Commission,  consisting  of  five  persons  to  be  appointed  by  the 
Mayor  and  Councils.  In  the  first  instance,  one  member  of  said  Com- 
mission shall  be  appointed  for  one  year,  one  member  for  two  years,  one 
member  for  three  years,  one  member  for  four  years  and  one  member 
for  five  years,  and  annually  thereafter  a  member  of  said  Commission 
shall  be  appointed  for  a  term  of  five  years.  An  appointment  to  fill  a 
casual  vacancy  shall  be  only  for  the  unexpired  portion  of  the  term.  All 
members  of  the  said  Commission  shall  reside  within  the  zone  of  juris- 
diction of  said  Commission,  as  hereinafter  defined.  They  may  make 
and  alter  rules  and  regulations  for  their  own  organization  and  proced- 
ure, consistent  with  the  ordinances  of  the  city  and  the  laws  of  the  com- 
monwealth. They  shall  serve  without  compensation  and  make  an- 
nually to  the  Mayor  and  Councils  a  report  of  their  transactions.  They 
may  employ  engineers  and  other  persons  whose  salaries  and  wages 
and  other  necessary  expenses  of  the  Commission  shall  be  provided  for 
through  proper  appropriation  by  Councils. 

Sec.  2.  The  clerks  of  Councils  shall,  upon  introduction,  furnish  to 
the  City  Planning  Commission,  for  its  consideration,  a  copy  of  all  or- 
dinances and  bills  and  all  amendments  thereto  relating  to  the  location 
of  any  public  building  of  the  city,  and  to  the  location,  extension, 
widening,  narrowing,  enlargement,  ornamentation  and  parking  of  any 
street,  boulevard,  parkway,  park,  playground  or  other  public  ground, 
and  to  the  relocation,  curtailment,  changes  of  use,  or  any  other  altera- 
tion of  the  city  plan  with  relation  to  any  of  the  same,  and  to  the  loca- 
tion of  any  bridge,  tunnel  and  subway,  or  any  surface,  underground  or 
elevated  railway.  The  said  Commission  shall  have  the  power  to  dis- 
approve any  of  the  said  ordinances,  bills  or  amendments,  which  disap- 
proval, however,  must  be  communicated  to  Councils  in  writing  within 
ten  days  from  the  introduction  of  said  ordinances,  but  such  dis- 
approval shall  not  operate  as  a  veto. 

31 


Sec.  3.  The  City  Planning1  Commission  may  make,  or  cause  to  be 
made,  and  lay  before  Councils,  and,  at  its  discretion,  cause  to  be  pub- 
lished maps  of  the  city  or  any  portion  thereof,  including  territory  ex- 
tending three  miles  beyond  the  city  limits,  showing  the  streets  and 
highways  and  other  natural  and  artificial  features,  and  also  locations 
proposed  by  it  for  any  new  public  buildings,  civic  centre,  street,  park- 
way, park,  playground  or  any  other  public  ground  or  public  improve- 
ment, or  any  widening,  extension  or  relocation  of  the  same,  or  any 
change  in  the  city  plan,  by  it  deemed  advisable,  and  it  may  make  re- 
commendations to  Councils  from  time  to  time,  concerning  any  such 
matters  and  things  aforesaid,  for  action  by  Councils  thereto,  and,  in  so 
doing,  have  regard  for  the  present  conditions  and  future  needs  and 
growth  of  the  city,  and  the  distribution  and  relative  location  of  all  the 
principal  and  other  streets  and  railways,  waterways  and  all  other 
means  of  public  travel  and  business  communications,  as  well  as  the 
distribution  and  relative  location  of  all  public  buildings,  public 
grounds  and  open  spaces  devoted  to  public  use. 

Sec.  4.  The  City  Planning  Commission  may  make  recommenda- 
tions to  any  public  authorities,  or  any  corporations  or  individuals,  in 
said  cities,  with  reference  to  the  location  of  any  buildings,  structures, 
or  works  to  be  erected  or  constructed  by  them. 

Sec.  5.  All  plans,  plots  or  re-plots  of  lands  laid  out  in  building 
lots,  and  the  streets,  alleys  or  other  portions  of  the  same  intended  to  be 
dedicated  to  public  use,  or  for  the  use  of  purchasers  or  owners  of  lots 
fronting  thereon  or  adjacent  thereto,  and  located  within  the  city  limits, 
or  for  a  distance  of  three  miles  outside  thereof,  shall  be  submitted  to 
the  City  Planning  Commission  and  approved  by  it  before  it  shall  be  re- 
corded. And  it  shall  be  unlawful  to  receive  or  record  such  plan  in  any 
public  office  unless  the  same  shall  bear  thereon,  by  endorsement  or 
otherwise,  the  approval  of  the  City  Planning  Commission.  The  dis- 
approval of  any  such  plan  by  the  City  Planning  Commission  shall  be 
deemed  a  refusal  of  the  proposed  dedication  shown  thereon.  The  ap- 
proval of  the  Commission  shall  be  deemed  an  acceptance  of  the  pro- 
posed dedication,  but  shall  not  impose  any  duty  upon  the  city  con- 
cerning the  maintenance  or  improvement  of  any  such  dedicated  parts, 
until  the  proper  authorities  of  the  city  shall  have  made  actual  appro- 
priations of  the  same  by  entry,  use  or  improvement.  No  sewer,  water 
or  gas  mains  or  pipes  or  other  improvements  shall  be  voted  or  made 
within  the  area  under  the  jurisdiction  of  said  Commission  for  the  use 
of  any  such  purchasers  or  owners,  nor  shall  any  permit  for  connection 
with  or  other  use  of  any  such  improvement  existing,  or  for  any  other 
reason  made,  be  given  to  any  such  purchasers  or  owners  until  such 
plan  is  approved.  Where  the  jurisdictional  limits  of  three  miles  out- 
side of  the  city  limits,  as  provided  in  this  section,  may  conflict  with  the 

32 


zone  of  similar  character  connected  with  another  city  of  the  third 
class,  the  jurisdiction  of  said  Commission  shall  extend  only  to  the 
point  equidistant  between  the  city  limits  and  the  limits  of  said  munici- 
pality. 

Sec.  6.  It  shall  be  proper  for  said  cities  to  provide  by  ordinance 
for  the  exercise  of  all  rights  and  powers  herein  conferred  upon  the  City 
Planning  Commission  by  a  Park  Commission  or  kindred  municipal 
Bureau  or  Commission  authorized  under  existing  laws.  And  no  per- 
son holding  office  under  the  government  of  any  of  said  cities,  except 
the  Mayor,  members  of  councils  or  Commissioners,  shall  be  ineligible 
to  serve  as  a  member  of  a  City  Planning  Commission. 

Sec.  7.  All  acts  and  parts  of  acts  inconsistent  with  this  act  are  re- 
pealed. 

SPECIAL  ASSESSMENTS,— DENVER  ACT. 
Extracts  from  Charter,  Adopted  March  2gth,  1904. 

ARTICLE  XI.  Public  Improvements.  Sec.  270.  The  city  and 
county  shall  have  power  to  contract  for  and  make  local  improvements, 
and  to  assess  the  cost  thereof  wholly  or  in  part  upon  the  property  es- 
pecially benefited,  .  .  .  Sec.  272.  The  board  (of  Public  Works) 
may,  in  districts  to  be  prescribed  by  the  board,  order  the  paving,  grad- 
ing, curbing,  guttering,  surfacing,  and  the  construction  of  sidewalks 
upon  any  street  or  alley,  .  .  .  Provided,  that  no  paving,  unless  a 
petition  therefor  has  been  filed,  shall  be  ordered  if  the  amount  to  be  as- 
sessed therefor,  upon  any  piece  of  real  estate,  shall  exceed  one-half  its 
valuation  for  assessment  for  general  taxes  .  .  .  And,  Provided, 
further,  that  if  a  remonstrance  against  the  making  of  the  improve- 
ments proposed  shall  be  filed  by  the  owners  of  a  majority  of  the  front- 
age of  the  real  estate  to  be  assessed,  the  improvements  shall  not  be 
made,  .  .  . 

Assessment  and  Payment.  Sec.  298.  Upon  completion  of  any- 
local  improvement,  the  board  shall  prepare  a  statement,  showing  the 
whole  cost  of  the  improvement,  including  not  to  exceed  six  per  cent, 
additional  for  costs  of  collection  and  other  incidentals  ;  and  apportion- 
ing the  same  upon  each  lot  or  tract  of  land  to  be  assessed  for  the  same. 
.  Sec.  300.  The  board,  sitting  as  a  board  of  equalization,  shall 
hear  and  determine  all  complaints  and  objections,  and  may  recom- 
mend any  modification  of  the  apportionments ;  and  the  council  shall 
thereupon,  by  ordinance,  assess  the  cost  of  said  improvements  against 
all  the  real  estate  in  said  district  and  against  such  persons,  respec- 
tively, in  the  proportions  above  mentioned.  Sec.  301.  All  assessments 
made  in  pursuance  of  this  article  shall  be  a  lien  in  the  several  amounts 
assessed  against  each  lot  or  tract  of  land,  from  the  publication  of  the 
assessing  ordinance,  and  shall  have  priority  over  all  other  liens  except 

33 


general  taxes.  .  .  Sec.  304.  In  case  of  election  to  pay  in  install- 
ments, the  assessments  shall  be  payable  in  not  less  than  two  nor  more 
than  ten  equal  annual  installments  of  principal ;  with  interest  in  all 
cases  on  the  unpaid  principal,  payable  annually  at  a  rate  not  exceeding 
six  per  cent,  per  annum  ; 

Bonds.  Sec.  312.  All  local  improvements  shall  be  paid  for  in 
public  improvement  bonds  ;  the  same  to  be  payable  only  out  of  the  mo- 
neys collected  on  account  of  the  assessments  made  for  said  improve- 
ments, respectively;  .  .  .  Sec.  313.  All  such  bonds  shall  bear  in- 
terest at  the  rate  of  not  more  than  six  per  cent,  per  annum,  . 

Parks.  Sec.  323.  The  city  and  county  is  hereby  divided  into  four 
park  districts,  .  .  .  Sec.  324.  In  addition  to  the  powers  herein 
conferred  to  acquire  lands  for  parks  and  parkways  by  the  sale  of  the 
general  bonds  of  the  city  and  county,  it  shall  be  lawful  for  the  park 
commission,  with  the  approval  of  the  mayor,  to  acquire  parks  and 
parkways  in  each  of  the  said  park  districts,  the  same  to  be  paid  for  by 
special  assessments  .  .  .  Sec.  326.  The  parks  and  parkways  so 
established  in  any  such  park  district,  or  such  part  thereof  as  may  be 
determined,  shall  be  paid  for  in  park  bonds,  bearing  interest  at  not  ex- 
ceeding six  per  cent,  per  annum.  .  .  . 


34 


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UNIVERSITY  OF  CALIFORNIA  LIBRARY 


